DISASTER RISK REDUCTION AND MANAGEMENT

IN THE PHILIPPINES

A desk study conducted by the Swiss NGO DRR Platform

following Typhoon Haiyan, Luzerne, July 2014

Tacloban City Astrodome used as evacuation center during typhoon Haiyan, where several

people reportedly drowned from the storm surge (AP Photo/Vincent Yu)

1

Content

1. Summary 1

2. Relevant current and future natural hazards 2

2.1 Meteorological Hazards 2

2.2 Geo-physical hazards 4

3. Determinants of vulnerability to Natural Disasters 6

3.1 Exposure/ demographic growth/ urbanization 6

3.2 Socio-economic factors 6

3.3 Physical infrastructure/ Environment 7

3.4 Institutional capacity weakness/ corruption 7

4. Coping Capacities/ main national and international stakeholders 8

4.1 Policy and legal frameworks 8

4.2 Institutional set up at national and local level 8

4.3 Risk Financing 11

4.4 Risk Assessment 12

4.5 Disaster Risk Management 14

5. Lessons Learned from typhoon Haiyan 15

5.1 Lessons to be learned from incident/ disaster analysis 15

5.2 Challenges ahead 16

5.3 Coordination and important interventions of other actors 16

5.4 Activities and geographical focus of Swiss NGOs 17

6. Recommendations 18

Annexes 18

1 Summary

On 8 November 2013 Typhoon Haiyan (or Yolanda by its local name), one of the strongest typhoons ever recorded,

made landfall devastating parts of the central Philippines, affecting 14 million people overall and proving once more

that the Philippines is one of the most disaster-prone countries in the world. The damage is immense and

reconstruction will take several years. As most of the Swiss NGO DRR Platform members will be implementing

recovery projects in the affected area partly with their own funds, partly funded by Swiss Solidarity, the Platform has

decided to conduct a first step of a comprehensive multi-risk assessment (Multi Hazard Risk Assessment Annex

1), which provides an inventory of legal frameworks, institutional capacity, access to available hazard data and

information, as well as important approaches used in the Philippines with a focus at national level.

The Philippine archipelago is one of the most disaster-prone areas of the world, with a wide span of different hazards

like tropical cyclones, accompanied by strong winds, intense rainfall and flooding, storm surges, flash floods,

droughts caused by El Nino, earthquakes and volcanic eruptions. Due to the location of the Philippines, there is an

increasing risk from the impacts of more frequent and extreme climate-related events, such as severe storms,

flooding or drought (Chapter 2 Hazards).

The Philippines as middle income country is characterized by a widening gap between rich and poor and has an

actual poverty rate of 26.5 %. Weak institutional capacities and poor social protection have lead to demographic

growth and rapid urbanization resulting in a large number of informal settlements highly vulnerable to natural

disasters (Chapter 3 Vulnerability).

The Philippine Government has enforced a comprehensive legal framework on DRR and CC, however, in general

the capacity for disaster risk reduction at the level of local governments units (LGUs) is still low (Chapter 4 Coping

Capacities).

The focus of the 5th chapter is on the regions affected by Haiyan including some important lessons learned in the

aftermath of the typhoon, while chapter 6 contains some general recommendation based on this risk assessment.

2

2 Relevant current and future natural hazards

Hazard

A dangerous phenomenon, substance, human activity or condition that may cause loss of life, injury

or other health impacts, property damage, loss of livelihoods and services, social and economic

disruption, or environmental damage.

Risk The combination of the probability of an event and its negative consequences.

UNISDR Terminology 2009

The Philippines is considered one of the most disaster-prone countries of the world. Its location on the western rim

of the Pacific and along the circum-pacific seismic belt (Ring of Fire) makes it vulnerable to a variety of natural

disasters. 60% of the total land area of the country is exposed to multiple hydro-meteorological and geo-physical

hazards such as storms, typhoons, floods, droughts, further aggravated by the effects of climate change, as well as

earthquakes and volcanic eruptions.

Intensive risk is associated with cyclones and earthquake, while extensive risk, accounting for 2/3 of all losses in the

Philippines, is mainly associated with flash floods and droughts. Figure 1 shows a national map of major natural

hazard risks the Philippines is facing, including a bar chart with the degree of exposure to natural hazards, and the

percentage of areas affected. Disaster trends for the Philippines show that the impacts of disasters are increasing, not

only by total people affected, but also by the impacts of disaster trends by estimated damage (cp. Annex 3).

2.1 Meteorological hazards

By their nature meteorological hazards will be aggravated by climate change. Using a mid-range emissions scenario,

the climate projections done by the Philippine Atmospheric, Geophysical and Astronomical Services Administration

(PAGASA) for 2020 and 2050 indicate that all areas of the country will get warmer and that there will be a change in

precipitation pattern with a likely increase in rainfall during the monsoon months.

In the Climate Change Vulnerability Index (CCVI)1 2014, released by the global risks advisory firm Maplecroft, that

measures the economic impacts of climate change, the Philippines is ranked 9th in the world, while Manila is among

the five cities most at risk at the global level (together with Dhaka, Mumbai, Kolkata and Bangkok).

2.1.1 Tropical Cyclones/Typhoons

Tropical cyclones accompanied by strong winds, intense rainfall and flooding represent the major hydro-

meteorological hazards in the Philippines. The climate of the country is strongly affected by rain-bearing (monsoon)

winds, which blow from the southwest from May to October and from the northeast from November to February.

From June to December, an average of twenty typhoons hit the country, out of which five to seven per year are

expected to be destructive. Most storms come from the southeast; with their frequency generally increasing from

south to north (cp. Figure 1). In general, Luzon has significantly higher risk than the southern part of the country,

where typhoons are heaviest in Samar, Leyte, eastern Quezon Province and the Batanes Islands. While the frequency

of typhoons striking the country may have changed only slightly due to climate change, it has influenced their

intensity and patterns: These climate trends coincide with the scientific evidence that rising sea surface temperatures

enhance the destructiveness of tropical cyclones. The path of typhoons has changed; more intense rains, causing

greater destruction and losses, now accompany even weaker tropical cyclones.

2.1.2 Storm surge/ coastal flood/

Most of the casualties and damage from cyclones are caused by storm surges and not by high wind speeds or rainfall

as is usually believed. Storm surges created by typhoons have struck the country many times in the past. The storm

surge with an estimated height between 2.3 and 5 m that devastated Tacloban City and many parts of the Visayas on

November 8 when typhoon Haiyan made landfall was not a unique phenomenon. According to historical records, for

instance in 1897 a storm surge hammered Leyte and Tacloban City, killing as many as 7,000 people. The north-

western part and some central areas also have a high risk to Tsunamis caused by seismic activities, but showing

similar effects as storm surges.

3

Figure 1: Natural Hazard Map Philippines

4

2.1.3 Flooding/ Flash Floods/ Land Slides/ Erosion (Deforestation)

Floods are usually triggered by typhoons, tropical depression and continuing heavy rains. The annual monsoon

season brings severe flooding to most areas of the country. For example in 2011, most of the disasters that claimed

the lives of people and affected properties and livelihoods of the most vulnerable were of extensive nature, brought

about by increased rainfall which caused massive flash flooding in areas that don’t normally experience such

conditions. Between January and September 2011, more than 50 incidents of flash flooding and flooding and

more than 30 landslides occurred, mostly caused by increased rainfall aggravated by illegal logging.

2.1.4 Droughts, Wildfire, Forest fire

In 1997 and 1998, global warming and El Niño caused a major drought in South-East Asia. This cyclical climate

pattern occurs every two to seven years. It is characterised by increases in temperatures of the usually cold waters

of the eastern Pacific Ocean on the order of plus 0.5 Cº- 1.5 Cº. Changes in temperature modify normal ocean

patterns, causing droughts in Asia and Africa, and heavy rains in South America. The El Nino phenomenon has

brought drought to the island of Mindanao in the southern Philippines and has drastically reduced rainfall in many

other parts of the country, thus causing huge losses in agriculture. 2.6 Mio people were affected and about 2.5 Mio

metric tonnes of rice and corn were lost. "El Niño" phenomenon can also trigger forest wildfires. Normally, the

dry season starts from January up to June or six months every year. Close to 200 hectares of forest plantations and

reforestation projects were scorched in 2012 by wildfires that spread from adjacent grasslands.

Due to climate change the Philippines are witnessing longer episodes of drought or El Niño, causing a large decrease

of agricultural production and sharp declines in GDP.

2.1.5 Sea level rise

According to the World Meteorological Organization WMO the Philippines has seen three times the global average

in sea level rise since the year 1901. (60 cm, against the global average of 19 cm) Although individual tropical

cyclones cannot be directly attributed to climate change, analysis on tropical cyclone passage in the Philippines

shows that there has been an increase in the number of cyclones in the over the last decades, and that higher sea

levels are making coastal populations more vulnerable to storm surges.

2.2 Geo-physical hazards

The location of the Philippines in the southern portion of the Pacific Ring of Fire where two major tectonic plates

(Philippine Sea and Eurasian) meet, makes it highly prone to earthquakes - and as a consequence, to tsunamis - and

volcanic eruptions. The Ring of Fire is an area in a 40,000 km-long horseshoe shape where a large number of

earthquakes and volcanic eruptions occur as a direct result of movements and collisions of tectonic plates. It is home

to over 75% of the world's active and dormant volcanoes; approximately 81% of the world's largest earthquakes

occur along the Ring of Fire.

Figure 2: Pacific Ring of Fire Figure 3: Active Volcanoes

5

2.2.1 Earthquakes

The Philippine Institute of Volcanology and Seismology PHIVOLCS has recorded 12 destructive earthquakes in

the last 40 years; the most damaging of which were the 1976 Mindanao Earthquake and Tsunami, which killed

approximately 6,000 people and caused about US $400 Mio (in present value) in damage, and the 1990 Central

Luzon Earthquake, which killed over 2.400 people and caused damages of about US $370 Mio. Recent studies show

that exposure to earthquakes in the Metro Manila area is comparable to that in San Francisco, Tokyo and other high-

seismic areas. Although earthquake disasters are not as frequent in the Philippines as the typhoons and flooding, the

impact generated on affected communities is usually massive and devastating.

2.2.2 Tsunami

See under storm surge/coastal floods which are very intensive but considerably less frequent than coastal floods /

storm surges.

2.2.3 Volcanic Eruptions

Situated along the Pacific Ring of Fire, the Philippines is also prone to volcanic eruptions. Out of 220 volcanoes in

the archipelago, 22 are classified as active (cp. Figure 2 Distribution of Volcanoes in the Philippines). A review of

the historic record indicates that central and southern Luzon are likely to experience a significant eruption about once

every three years, with a major eruption perhaps every few decades. The most active volcanoes in the Philippines

are Bulusan, Mayon, Canlaon, Taal and Mount Pinatubo. The most recent major eruption in the country and the

world's second largest terrestrial eruption of the 20th century was the Mount Pinatubo eruption in June 1991.

Successful forecast of the onset of the climactic eruption by PHIVOLCS led to the evacuation of tens of thousands

of people, saving at least 5,000 lives, but the surrounding areas were severely damaged by volcanic material

and thousands of houses were destroyed. Taal Volcano with 33 recorded eruptions since 1572 has been dormant

since 1977; however it has shown signs of increasing seismic activity since 1991.

Canlaon Volcano situated in Central Visayas, Negros Oriental has erupted 25 times since 1866. Eruptions are

typically of small-to-moderate size and produce minor ash falls near the volcano; in 1996, Canlaon erupted without

warning.

Figure 4: Risk scenarios Philippines

Possible hazards Potential Impact of selected hazard/risk Districts likely to be severely

affected

Tropical Cyclones/Typhoons

Southwest monsoons: May to

October)/ Northeast monsoons:

November to February

June to December on average

twenty typhoons, five to seven

of these destructive

high wind speeds, rainfall, storm surges,

flooding, land slides

loss of lives, economic losses

damage to property, houses, livelihoods,

infrastructure

displacement and migration

Luzon, Samar, Leyte, eastern

Quezon Province and the

Batanes Islands

Storm surge/ coastal flood/

tsunami (triggered by an

offshore earthquake)/ rise of sea

level

wind, storm surges, flooding, land slides

loss of lives, economic losses

damage to property, houses, livelihoods,

infrastructure

displacement and migration, as a possible

consequence human trafficking

Up to 70 percent of the 1,500

municipalities located along

the coast, mainly on gulfs,

bays and estuaries;

Metro area Manila

Flooding/ Flash Floods/ Land

Slides/ Erosion (Deforestation)

affected properties and livelihoods of the

most vulnerable

damage to infrastructure

contamination of drinking water

displacement and migration, as a possible

consequence human trafficking

Basins of principal river

systems, such as

Pasig/Marikina, Cagayan de

Oro, Iligan, Agno,

Pampanga, Bicol etc.

6

Earthquakes/ Ring of Fire

12 destructive earthquakes in the

last 40 years

injuries, loss of lives and property

fire as a secondary effect of earthquakes

can cause damage

potential of tsunamis as secondary hazard

damage to populated cities, with rapid

urban growth

time of day: higher causalities on

weekdays between 9:00 AM and 4:00

PM as well as during the night when

people are asleep

destruction of roads, bridges and other

infrastructure; roads can be blocked by

debris

damage to the communications

infrastructure

Most regions of the

Philippines, mainly in the

Eastern part

Volcanic Eruptions

220 volcanoes in the

archipelago, 22 classified as

active; the most active of these

are Bulusan, Mayon, Canlaon,

Taal and Mount Pinatubo.

Significant eruption once every

three years; major eruption

every few decades

damage to livelihoods and buildings

evacuation of people out of the affected

area, migration

Pinatubo and Taal: central

and southern Luzon,

Canleon: Central Visayas,

Negros Oriental

Bulusan: Luzon, Province of

Sorsogon

Mayon: Albay Province

Mount Ragang: boundary of

the provinces of Lanao del

Sur and Cotabato, Mindanao

Droughts/ reduced rainfall due

to periodic El Nino phenomenon

wildfire/ forest fire etc.

fire season from January to June

loss of lives and economic losses

huge losses in agriculture, mainly crops

of rice and corn

displacement/migration of people

outbreak of water-borne diseases

Southern part of Philippines:

Mindanao, Central and

Western Visayas, Bicol

region etc.

3 Determinants of Vulnerability to Natural Hazards in the Philippines

Vulnerability The characteristics and circumstances of a community, system or asset that make it susceptible to the

damaging effects of a hazard. (vs. exposure)

Exposure People, property, systems, or other elements present in hazard zones that are thereby subject to

potential losses

UNISDR Terminology 2009

3.1 Exposure

Rapid urbanization in the country has led to a large number of unplanned, informal and overcrowded settlements,

often in hazard-prone areas. Demographic growth and urbanization have also affected the provision of basic services,

resulting in deteriorating solid waste management and aggravating flooding in urban areas for the past years. The

urban poor are also often highly vulnerable to natural hazards, in part as rapid urban growth and lack of tenure have

forced many to squat in marginal and hazard-prone areas such as flood-prone areas, riverbanks, along the coast and

on steep slopes. According to a report of DILG in 2011 2.7 Mio persons or 25% of the population of Metro Manila

were informal settlers. Natural disasters increase their vulnerability and perpetuate deprivation and marginalization.

3.2 Socio-economic factors

Mutual causal inter-linkages between poverty and vulnerability to natural hazards are broadly recognized. The

Philippines reduced considerably poverty rate from 40% in 1994 to 26 % in 2009. Looking at rural poverty the

picture is different: poverty rate could only be reduced from 53% to 50% (http://mdgs.un.org/unsd/mdg/Data.aspx).

Two-thirds of the poor are located in rural areas and primarily dependent on agriculture, which in turn is highly

7

vulnerable to natural hazards According to ADB, the sector accounted for 63% of total reported disaster losses

between 1990 and 2006. The average annual damage caused by disasters amounts to an average of 0.5 percent of

GDP each year. Economic vulnerabilities manifest themselves, for instance, when poor households lack the assets or

resources to repair, rebuild or replant their livelihoods or workers in informal employment with no access to social

safety nets face immediate or on-going loss of incomes. Often these vulnerabilities are further aggravated by

significant social disruption, arising from widowhood, single-parent households or orphans and elderly individuals

with no immediate family to care for them. The resulting post-disaster large-scale migration (temporary and

permanent) out of typhoon-affected regions places pressure on social services in other areas, such as Manila and

Cebu, and also increases the vulnerability of affected populations to trafficking and other forms of abuse.

3.3 Physical infrastructure

The poor quality of infrastructural systems including roads, energy supply, water and irrigation that are not

constructed to resist to extreme events with very high winds, very strong rain events is also contributing to the

vulnerability of communities. An assessment of IOM after typhoon Haiyan revealed that for instance in Eastern

Samar over 90 % of the buildings designated by the LGUs as evacuation centre were partly or completely destroyed

and some of them even situated in flood-prone areas.

Poor quality of infrastructure is often as well associated with the lack of law enforcement going along with still

widespread corruption.

3.3.1 Environment

Environmental degradation has hugely contributed to increasing natural disaster occurrence in the Philippines.

Demographic growth and poor land-use planning have led to the massive depletion of natural resources and

destruction of the environment. Environmental factors such as denuded forests increase flood risks. Deforestation

started in the 1930s, with a peak in the 1950s and 1960s. Although its pace fell slightly in the 1980s, the effects of

loose soil and reduced forest cover from past forestry activities are still being felt in frequent landslides and floods.

Mangrove trees can for example play a vital role as nature’s bio-shields against storm surges, coastal floods and or

tsunamis as they absorb and dissipate much of the energy of the storm surge from a typhoon. However, in recent

years the Philippines has lost over 50% of its mangrove stands mainly due to land development, pollution,

deforestation for fuel and the establishing of fishponds for aquaculture.

The substantial rise in sea levels, the Philippines is expected to experience further on, based on the trend of the last

hundred years, will further exacerbate the vulnerability of approximately 70 % of the 1,500 municipalities that are

located along the coast.

3.4 Institutional capacity

A natural disaster with the dimension of typhoon Haiyan also discloses the varying levels of institutional capacity

and relative strength of government systems across different affected regions. It is evident that there were big

differences in the extent to which LGUs were able to respond to the typhoon warning and assist their communities to

prepare for its impact. The level of the capacity of the LGU in coordinating the response, mobilizing resources and

restoring services obviously also has a direct effect on the way in which affected communities are able to recover

from the typhoon’s impact. Identifying and addressing vulnerabilities in the governance and social delivery systems

across the affected region should therefore also be a priority in developing an effective response. In the majority of

LGUs the enforcement of land-use regulations and building codes is not yet put into practice and the integration of

Disaster Risk concerns into local government development plans/ mainstreaming into sector strategies is still

missing.

3.4.1 Corruption

The Philippines still suffers from widespread corruption and nepotism, although the situation has slightly improved

recently. According to a World Bank study in 2008, corruption in the Philippines was considered to be the worst

among East Asia’s leading economies, and in the 2012 Corruption Perception Index published by Transparency

International the country is ranked 94/177. Corruption exists in all levels of the government, especially among high-

level civil servants, police and in the judicial system. Bribes in return for licences and permits in the process of

8

compliance with guidelines or requirements are very common, thus making the construction sector in general and the

implementation of land-use and environment regulations in particular potentially vulnerable to corruption.

Politics are still under the control of a few notable families (political dynasties), rather than organised around the

voting for political parties.

4 Coping capacities/ main national and international stakeholders

4.1 Policy and legal frameworks

The Philippines is a signatory to disaster management treaties such as the Hyogo Framework for Action (HFA) and

the ASEAN Agreement on Disaster Management and Emergency Response (AADMER). The Philippine Strategic

National Action Plan for Disaster Risk Reduction 2009-19 (SNAP), developed with the support of the United

Nations, is a “road map” indicating the vision and strategic objectives of the Philippines in compliance with the

strategic goals of the HFA. Based on the SNAP 2009-2019, the legal framework on Disaster Management includes

the Philippine Disaster Risk Reduction and Management (DRRM) Act (RA10121) and its Implementing Rules

and Regulation of 2010, as well as the National Disaster Risk and Management Plan (NDRRMP) 2011 to 2028.

As stated in the DRRM Act 10121, it will be the policy of the State to uphold the people's constitutional rights to

life and property by addressing the root causes of vulnerabilities to disasters, strengthening the country's

institutional capacity for disaster risk reduction and management and building the resilience of local communities to

disasters including climate change impacts. In terms of decentralization, local governments and communities are

mandated by the DRRM Act to enforce DRR measures to address their respective risks.

The NDRRMP 2011 to 2028 serves as a national guide for sustainable development. It aims at building the adaptive

capacities of communities, increasing the resilience of vulnerable sectors; and optimizing disaster mitigation

opportunities. The plan includes 4 Priority Areas with Long Term Goals, 14 Objectives, 24 Outcomes, 56 Outputs

and 93 Activities. It also maintains systematic links with the 2011-2016 Philippine Development Plan’s Goals, the

National Climate Change Plan and the HFA.

Furthermore the NDRRMP highlights, among other things, the importance of mainstreaming DRRM and CCA in

the development processes such as policy formulation, socio-economic development planning, budgeting and

governance particularly in the areas of environment, agriculture, water, energy, health, education, poverty reduction,

land-use and urban planning and public infrastructure and housing. The NDRRMP also outlines activities aimed at

strengthening the capacity of the national government and the local government units (LGUs) to build the

disaster resilience of communities and to institutionalize arrangements and measures for reducing disaster risks,

including projected climate risks and enhancing disaster preparedness and response capabilities at all levels.

The DRRM Act (RA 10121) is complimented by its twin law on Climate Change (RA 9729 or Climate Change Act

of 2009).

4.2 Institutional set up

4.2.1 Regional level

The Philippines is an active member of the ASEAN Committee on Disaster Management (ACDM). Under the

AADMER Work Programme 2010-2015, regional systems for risk identification and assessment, early warning, and

monitoring are in the process of being established by the ACDM. The intention is to connect national early warning

and monitory systems with the regional so that regional hazards can be taken into account at the national level.

A conference on Disaster risk Reduction and Management of the Asia-Europe Meeting ASEM on 4- 6 June 2014 in

Manila was aimed at bringing together the lessons learned from the typhoon Hayian response and defining the

relevant elements for sustainable reconstruction after typhoon (Post-Haiyan Tacloban Declaration)

4.2.2 National level

The National Disaster Risk Reduction and Management Council NDRRMC/ National Platform under the

Office of Civil Defence acts as the main coordinator for all disaster management and serves as the President’s

9

adviser on disaster preparedness programmes, disaster operations and rehabilitation efforts undertaken by the

government and the private sector. It has the overall responsibility for approving the NDRRMP. It also has primary

responsibility of monitoring the development and enforcement of the various laws, guidelines, codes or technical

standards used by agencies; managing and mobilizing resources for DRRM, including the National DRRM Fund

(NDRRMF)and the monitoring of utilization of the Local DRRM Fund (LDRRMF). It is chaired by the Secretary of

National Defence with the heads of 18 departments as members. The NDRRMC is a policy and coordinating agency

and operates through member agencies and through its local networks (i.e., the regional and local disaster

coordinating councils), which are responsible for planning, implementing, funding and carrying out specific

activities related to DRM. A Memorandum of Understanding between the NDRRMC and Climate Change

Commission (CCC) was signed with the objective of converging DRR and CCA. Given the common goals and

objectives of increasing the resilience of communities and the country, it aims at promoting the collaboration and

harmonization of efforts across these two themes, especially in formulating local plans and actions.

The Office of Civil Defence (OCD) ensures the implementation and monitoring of the NDRRMP. It conducts

periodic assessments and performance monitoring of the member-agencies of the NDRRMC. The OCD is

responsible for ensuring that the physical framework, social, economic and environmental plans of communities,

cities, municipalities and provinces are consistent with the NDRRMP and that all DRR programmes, projects and

activities requiring regional and international support are in accordance with national policies and aligned with

international agreements. At the regional and local levels, the OCD reviews and evaluates the Local DRRM Plans

(LDRRMPs) to facilitate the integration of disaster risk reduction measures into the local Comprehensive

Development Plan (CDP) and Comprehensive Land Use Plan (CLUP).

The Department of the Interior and Local Government (DILG) is responsible for public safety and thus

responsible for the Philippine National Police, as well as for strengthening local government capability to deliver

basic services to the population.

The Department of Environment and Natural Resources (DENR) is responsible for governing and supervising

the exploration, development, utilization, and conservation of the country's natural resources. The National

Mapping Resource and Information Authority (NAMRIA), is as the central mapping agency under the DENR,

and provides the public with natural resources data in the form of maps, charts, texts, and statistics. The Mines and

Geosciences Bureau (MGB) is the primary government agency under the DENR responsible for the conservation,

management, development and proper use of the country’s mineral resources and the maintenance of the Geohazard

Web Portal.

The Philippine Climate Change Commission (CCC) is an independent and autonomous body that has the same

status as a national agency and is attached to the Office of the President. The Climate Change Office works under

DENR.

The Department of Science and Technology (DOST) is responsible for the coordination of science and

technology-related projects. The Philippine Atmospheric, Geophysical and Astronomical Services

Administration PAGASA is a national institution under the DOST dedicated to providing flood and typhoon

warnings, public weather forecasts and advisories, meteorological, astronomical, climatological, and other

specialized information and services primarily for the protection of life and property and in support of economic,

productivity and sustainable development. The Philippine Institute of Volcanology and Seismology (PHIVOLCS)

is a national institution dedicated to providing information on the activities of volcanoes, earthquakes, and tsunamis.

It monitors volcano, earthquake, and tsunami activity, and issues warnings as necessary. It is mandated to mitigate

disasters that may arise from such volcanic eruptions, earthquakes, tsunamis, and other related geotectonic

phenomena.

The Department of Education (DepED) is active in awareness raising in schools and through the dissemination of

information and communication materials on DRR and CC to schools in hazard prone provinces, as well as through

the integration of DRR and CC into the curricula of Primary and Secondary schools.

Other departments and agencies involved in Disaster Management, response and recovery programmes include the

Department of Public Works and Highways (DPWH), which is responsible for the maintenance of road network

10

and irrigation system, the Department of Social Welfare and Development (DSWD), responsible for the

protection of the social welfare rights of Filipinos, including the population in the affected area, and the National

Economic and Development Authority (NEDA). NEDA is an independent cabinet-level agency of the Philippine

government responsible for economic development and planning. It is headed by the President of the Philippines as

chairman of the NEDA board, with the Secretary of Socio-Economic Planning, concurrently NEDA Director-

General, as vice-chairman. A number of Cabinet members, the Governor of the Central Bank, the Chairman of the

Metropolitan Manila Development Authority, the Governor of the Autonomous Region in Muslim Mindanao, the

Chairman of the Commission on Information and Communications Technology, the Chairman of the Subic-Clark

Area Development Corporation, and the National President of the Union of Local Authorities of the Philippines are

members of the NEDA Board.

The local government administrative system of the Philippines is three-tiered, consisting of 1) provinces and

highly urbanized cities (81), 2) cities (136) and municipalities (1,496) and 3) barangays (villages, 41,994) as the

smallest administrative unit. The DRRM Act 10121 empowers local governments and communities to enforce

DRR measures and to address their respective risks; it mandates them to establish a Local Disaster Risk

Management Office LDRRMO and to set aside not less than 5 % of their estimated revenue as the Local Disaster

Risk Reduction and Management Fund LDRRMF. Furthermore, it is the task of the LGUs, in particular at the

province level, to adopt the official DRR Mainstreaming Guidelines and apply them in their planning activities, e.g.

the Development Plan and the Land Use Plan. The LDRRMOs at the provincial, city and municipal levels and the

Baranagay Development Councils are mandated to design, program and co-ordinate DRRM activities and to develop

a Local Disaster Risk Management Plan LDRRMP consistent with the National DRR Framework. (For more

detailed information on the structures and mandates at LGU level cp. annex 6)

4.2.3 Important external actors (UN, international donors, NGO)

UNDP started its operations in the Philippines in 1965 and has strongly supported the Government of the Philippines

in establishing a comprehensive disaster risk management system. The inter-agency project READY, implemented

together with other programmes with the technical assistance from UNDP, has laid important foundations for risk

mapping and early warning systems in the country. The UNDP country programme document of UNDP for the

phase 2012-16 includes as one of its five key areas, improving resilience against conflicts and disasters by

supporting Early Recovery and Disaster Risk Reduction. UNDP has also supported, together with the EC the NEDA

in the elaboration of the Guidelines Mainstreaming Disaster Risk Reduction in sub-national Development and Land

Use/ Physical Planning in the Philippines launched in July 2009.

As stated in its mandate the International Federation of Red Cross and Red Crescent Societies IFRC is involved

in disaster risk reduction by strengthening the preparedness and capacities at community level through its national

partner organisation Philippine Red Cross PRC, which is among others responsible for a network of volunteers in

the coastal zones who disseminate typhoon warnings

Since 1998 preparedness projects of international NGOs and governmental institutions in total amount of Euro 7.7

million have been funded under the Disaster Preparedness Programme DIPECHO of the European Commission.

OXFAM has been active in the field of Disaster Risk Reduction and Climate Change Adaptation in the Philippines

for many years, mainly with the aim of strengthening the disaster-resilience at community level (Safer Communities

Project) and the institutional capacities at local level, with a strong focus on the role of women. In 2009 OXFAM

piloted the establishment of a permanent Disaster Risk Management Office in a local government unit. OXFAM has

supported DILG in the implementation of a project that promotes innovative and indigenous coping mechanisms and

practices to mitigate effects of disasters and climate changes. They are also working together with the Development

Academy of the Philippines DAP and PDCC Albay.

The programme of GIZ Deutsche Gesellschaft für Internationale Zusammenarbeit in the Philippines has a strong

focus on Climate Change, but in the past GIZ has also been involved in risk mapping and has published a revealing

study on the efficiency of the Early warning efforts for Typhoon Haiyan in Leyte.

11

There are various international NGOs with a strong focus on Disaster Risk Reduction such as Care International,

Christian Aid and Plan International. Their main Philippine partners include government agencies and

municipalities.

The Swiss Agency for Development and Cooperation SDC is not involved in long-term projects on DRR in the

Philippines, but has supported the country repeatedly with response and recovery activities after major disasters.

Together with the European Union SDC has also co-funded the Asia-Europe Meeting ASEM Manila Conference on

Disaster Risk Reduction and Management titled Post-Haiyan- A Way Forward which took place from 04 to 06 June

2014.

Gaps/ weaknesses:

The Philippines has a comprehensive regulative framework for Disaster Risk Management, however, at the local

level structures and capacities are still weak. The results of a Disaster Preparedness Audit of DILG in 2011

considering 8 major factors such as functionality of LDCCs, availability of evacuation centres, appropriate

equipment and quality of the Disaster Risk Management Plan revealed that of LGUs surveyed, 33 % of the

provinces, 34 % of cities and 60% of municipalities were not prepared properly. Only 45 of 80 provinces had

DRRM units/offices and no more than 23 of 80 provinces have permanent staff. Most LGUs, particularly third and

fifth class municipalities and less capable cities do not have sufficient capacities to prepare a comprehensive land

use plan that integrates risk factors as a basis for planning. Implementation of DRR activities is still highly

influenced by local political agenda and interests. Lack of funds for DRR measures is another challenge.

4.3 Risk Financing

4.3.1 Governmental budget

The National Disaster Risk Reduction and Management Council (NDRRMC) is responsible for the mobilizing of

resources for DRRM, including for the National DRRM Fund (NDRRMF) as well as for the monitoring of

utilization of the Local DRRM Fund (LDRRMF). RA 10121 mandates local government units (LUGs) to set aside

5% of the estimated revenue as the Local Disaster Risk Reduction and Management Fund (LDRRMF) to

support disaster risk management activities such as preparedness programmes including training and purchase of

rescue equipment, but also for response activities. The LDRRMF can also explicitly be used for the payment of

premiums on calamity insurance. A 30 % of LDRRMF should be allocated to a Quick Response Fund.

4.3.2 Private sector

In the past, humanitarian agencies such as OCHA have been cautious in engaging the private sector, because of the

“culture clash” between the humanitarian and private sectors. However, some enabling factors such as the existence

of Philippine Disaster Recovery Foundation and the presence of various foreign chambers of commerce, deep-routed

historical connections of some of the most well-known American companies such as Coca-Cola and Chevron make

the Philippines an effective breeding ground for public-private partnerships.

In the wake of typhoon Haiyan there has been a significant shift in the role business is playing in humanitarian relief

and disaster response. Under the leadership of Senator Panfilo Lacson, the focal point of the Philippine government

for post-Haiyan rehabilitation, nine of the Philippines’ largest and most powerful local companies have pledged to

lead reconstruction and rehabilitation in specified areas.

The Philippine Disaster Recovery Foundation (PDRF) composed mostly of executives from private corporations

has been created out of the need to make use of the investment of the private sector for disaster management and in

return to include it in decision-making and design processes. PDRF activities include preparedness, relief, recovery

and reconstruction. Ongoing recovery programmes are focused primarily on the areas hardest-hit by typhoon Haiyan,

by the earthquake in Bohol and Cebu, and by the unrest in Zamboanga.

12

4.3.3 Official Development Assistance (ODA)

In 2012 the net commitment from ODA amounted to USD 8.83 billion/year. With a share of over 30% Japan is the

largest donor to the Philippines, followed by China, the World Bank Group, the Asian Development Bank, the

United States, the Global Fund, Australia, the European Union, Canada and South Korea. Some of these donors have

included Disaster Risk Management into the priorities of their aid programmes.

Japan has been the main donor for supporting investments and providing technical assistance for flood management

developments in and around Metro Manila. The joint JICA-WB-ADB study, Climate Risks and Adaptation in Asian

Coastal Mega-Cities, completed in 2010, includes the case of Manila, prepared by JICA, which constitutes an

important document for the Master Plan study team. JICA is now channelling investments identified in the Master

Plan study.

The involvement of the Global Facility for Disaster Reduction and Recovery GFDRR of the World Bank in the

Philippines began in October 2009 with a Post Disaster Needs Assessment PDNA after typhoons Onday and Pepeng

(see GFDRR-funded projects above), which has identified a number of priority investments. The World Bank has

provided lending and technical assistance in the areas of risk financing, mitigation, preparedness, and emergency

response. The ongoing GFDRR programme includes a project to support the Philippines in the areas of risk

financing and local institutional capacity building.

The Asian Development Bank ADB supports risk financing with a focus on private sector assets, thus

complementing the World Bank programmes mainly directed at public assets. In this regard, ADB is developing a

TCIP-like (Technologies for Critical Incident Preparedness) insurance scheme for households and small- and

medium- level enterprises in the Philippines.

Australia (AusAid) supports hazard risk and vulnerability mapping mainly through the (i) collection of data and

information on floods and risk exposure, and the preparation of a digital elevation model (DEM) using Light

Detection and Ranging (LIDAR) technology; and (ii) the development of flood hazard maps for sections of Metro

Manila through hydrological and hydraulic modelling, coupled with digital terrain data and geographic information

systems (GIS)

The European Commission EC has been active in the field of DRM the Philippines since 1998 through its Disaster

Preparedness Programme DIPECHO. It aims at building the resilience of communities regularly affected by

natural disasters, but also supports the improvement of preparedness and response capacities of the authorities

and specialised institutions such as PAGASA and PHILVOCS. Project partners of DIPECHO include UNDP, GIZ,

CARE, OXFAM, Plan International and others more.

Gaps/ weaknesses:

The situation in the Philippines reflects broader trends in global development finance. Corporations see long-term

business value in investing in disaster response and sustainable development. At the same time, public sector aid

budgets are being squeezed by government austerity and global humanitarian organizations are being stretched by

the range of crises across the world. According to OCHA, out of the total foreign aid donations to Haiyan private

organizations and individuals account for about 25 percent or $150 million of the total pledges, while, as means of

comparison, the world’s top five traditional public sector donors - the United States, European Union, United

Kingdom, Australia and Japan — have committed about $280 million.

However, there is the risk of a “culture clash” between the humanitarian and private sectors that has to be overcome

to ensure that the basic rights of most vulnerable groups are respected.

4.4 Risk assessments

Research for multi-risk assessments is normally done by government research institutes such as PHIVOLCS and

other agencies under the Department of Science and Technology (DOST) as well as by universities. In 2011 the first

Disaster Risk Reduction and Climate Change Academy PDCC was established in Albay, a province that is facing

significant challenges with regard to disaster risk reduction and climate change, as it is specially prone to natural

hazards as it is home of the Philippines most active volcanoes and is exposed to frequent passages of tropical

cyclones. There are additional other institutions in the country active in research or offering courses and/or

professional education programmes on Climate Change Adaptation and Disaster Risk Reduction, such as the Ateneo

13

School of Government in Manila, the Development Academy of the Philippines DAP, the Mindanao State

Universities and Colleges or the Cordillera Studies Centre UP Baguio.

4.4.1 Hazard and risk maps

Risk maps including analysis of hazards and vulnerability mapping of a specific geographical location is the crucial

input for the DRR measures, such as land use planning, technical risk mitigation measures, preparedness planning as

well as for response and recovery measures. Reliable risk maps provide an important tool to get a comprehensive

picture of the various risks a community is exposed to. The better the understanding of the multi risk exposure of

communities is, the more efficient and effective risk management measure can be taken during the set up of new

projects.

Detailed and specific maps are necessary for local prevention, intervention and recovery management. Hence,

several DRRM actors in the Philippines are producing and using hazard and risk maps of global, national and local

level.

The following governmental agencies are responsible for producing hazard and risk maps:

Philippine Institute of Volcanology and Seismology – Dep. of Science and Technology (PHIVOLCS-DOST)

Philippine Atmospheric, Geophysical, Astronomical and Services Administration - DOST (PAGASA-DOST

Mines and Geosciences Bureau – Department of Environment and Natural Resources (MGB-DENR)

National Mapping Resource and Information Authority – DENR (NAMRIA-DENR)

Annex 2 provides an overview about the various risk map providers and maps that are available online. While there

are several actors in the Philippines active in risk mapping activities, the website of the Mines and Geosciences

Bureau (http://gdis.denr.gov.ph/mgbviewer/ ) provides a good repository to gather local level information of various

risk maps that have been produced. In order to analyse potential risks of different locations within the Philippines, it

is recommended to consult these websites for an overview of the various risks that the communities in these areas are

exposed to.

An important contribution to the risk mapping in the Philippines has been provided in the framework of the Hazards

Mapping and Assessment for Effective Community-Based Disaster Risk Management READY Project 2006-

2011, funded by UNDP, AusAid and ADB implemented by OCD-NDCC. In collaboration with PHIVOLCS,

PAGASA, MGB and NAMRIA multi-hazard maps for 27 target provinces (1:50,000 scale) and priority

municipalities/ cities/ barangays (1:10,000 scale) have been produced and physical infrastructure, such as school,

hospital and residential buildings, plotted against these hazard maps. More information is available online at:

http://drh.edm.bosai.go.jp/database/item/5317485453687b8abcca59e9e7c1178fc483c625.

Unfortunately only part of the areas subsequently affected by Typhoon Haiyan isincluded in the project (cp. Figure

5: READY Project Target Areas)

The Reliefweb website http://reliefweb.int/updates?f[0]=field_country%3A188&f[1]=field_content_format%3A12,

provides a good data source for risk maps that are produced during emergencies by different humanitarian actors.

4.4.2 Awareness and Training materials

Various government agencies undertake their respective disaster awareness and training programmes nationwide.

For instance, PHIVOLCS have developed and published information materials for the dissemination of disaster

awareness and preparedness, e.g. a compilation of tsunami hazard information, tools and materials (i.e., assessment

tools, public awareness tools, training material, and best practices) under the “Awareness and Preparedness Tools for

Materials Assessment Project.”

Gaps/ weaknesses:

Hazard and risk maps vary in quality. The prevailing hazard-specific approach to increasing public awareness needs

to be complemented by a comprehensive, nationwide public advocacy programme to increase the awareness of the

general public on how to reduce their vulnerability and prepare for natural disasters needs.

14

4.5 Disaster Risk management

4.5.1 Prevention

In the Medium Term Philippine Development Plan MTPDP (2010-2016) Disaster Risk Management and Climate

Change are considered cross cutting issues. Local government units, particularly at the provincial level, have been

instructed to adopt the Guidelines Mainstreaming Disaster Risk Reduction in sub-national Development and

Land Use/ Physical Planning in the Philippines (NEDA 2009) and use them in their planning activities.

A DILG programme (supported by WB and UN-Habitat) aims to mainstream DRRM/CCA in Local Government

Systems and Processes into local Comprehensive Land Use Plans, Comprehensive Development Plans and

investment programmes. This includes a community-based diagnosis of vulnerabilities and enacting appropriate

ordinances/policies/ instruments that reduce risks, e.g., settlement/housing, building standards. For low risk

LGUs, integration of DRM/ CCA into the Comprehensive Land Use Plan and the Comprehensive Development Plan

is to be undertaken. For high risk LGUs, the preparation of a separate Contingency Plans and Counter-Disaster

Plan is done. Moreover, DILG promotes the compliance and enforcement of policies impacting on DRR through

safe building regulations, enforcement of national building code, review of design and construction practices, zoning

ordinances etc.

The national physical framework plan also indentifies areas that are considered environmentally critical and/or as

prone to natural hazards (geologic hazards, floods, typhoons, volcanic activity, etc.) and areas with critical slopes.

The government started in 2010 to invest more in urban risk reduction after a series of devastating typhoons. The

Earthquakes and Megacities Initiative has also implemented a project on risk-sensitive urban redevelopment

planning with Makati City as pilot city.

4.5.2 Preparedness

In terms of monitoring hydro-meteorological hazards, PAGASA currently has a widespread system of weather

stations to perform its monitoring and early warning functions. Concerning a flood early warning system (EWS), a

community based flood EWS and Information Dissemination Network has been implemented. A related programme

is the Enhancement of Flood Forecasting and Warning System (FFWS). Regarding geophysical hazards,

earthquake monitoring is done by PHIVOLCS with the use of a 66 station digital seismic network. The institute

also maintains a volcano monitoring systems with 6 volcano observatories using various techniques. For tsunamis a

community-based EWS is being piloted by PHIVOLCS in several high-risk barangays all over the country.

The Nationwide Operational Assessment of Hazards programme NOAH was launched by DOST in 2012 with the

aim to use advanced technology for timely and accurate hazard information through various media and

communication platforms, thus improving the early warning system and the disaster management capacities of Local

Governments. The project NOAH website www.noah.dost.gov.ph is one of the platforms designed by the

Government to mitigate and prevent disasters by conveying critical, reliable, authoritative, understandable and

timely information to communities and LGUs. The website includes hazard maps, weather forecasts, flood warnings

and is closely linked with PAGASA and PHIVOLCS.

A Community-based Early Warning System (CBEWS) has also been included as second component in the READY

project.

Gaps/ weaknesses:

Experience during Typhoon Haiyan has clearly demonstrated that the early warning information has to feed into

appropriate evacuation measures. The big challenge is firstly to increase the awareness of people themselves so they

understand the early warning system and take action based on early warning information, and secondly to widen the

reach of early warning to get to the more vulnerable groups of society in a timely way.

4.5.3 Risk Transfer

In 2010 a Micro insurance Regulatory Framework to promote insurance for risk protection and relief against

disasters (e.g. Crop and property insurance) was adopted, with the aim to encourage private sector participation, e.g.

15

to work in partnership with organizations that are currently serving the poor, such as microfinance organizations,

rural banks and humanitarian organizations.

Gaps/ weaknesses:

Risk transfer schemes such as insurance are not very common in the Philippines, mainly due to inadequate

reinsurance facilities..

5 Lessons Learned/ Gaps identified after Typhoon Haiyan

The area affected by typhoon Hayian was already one the poorest region in the Philippines, with weak infrastructure,

struggling agricultural and fishing sectors and 40- 60 percent of families (approximately two million people) below

the poverty line, earning less than US$2 per day. Despite impressive economic growth in recent years in the

Philippines at the national level, there has been little to no impact on poverty alleviation in these regions, thus

indicating a high level of inequality and disparity in the society. A majority of farmers in the affected area have small

plots of land, or they are tenants with low domestic saving rates. There are also a large number of landless

agricultural workers. Together with the fishers and the forestry workers they represent the poorest sector of the

society. According to UNDP the participation in education in the region is low, for every 100 children who start

elementary school only 34 finish while high maternal mortality rates, a very high incidence of tuberculosis and poor

quality and inaccessibility of public health services are among the health-related factors which increase vulnerability.

5.1 Lessons to be learned from incident / disaster analysis

In its comprehensive Assessment of Early Warning Efforts in Leyte for Typhoon Haiyan/Yolanda, published

March 2014 GIZ calculates that approximately 94% of the casualties in Tacloban, Palo and Tanauan were caused by

the storm surge with an estimated height of between 2.3 and 5 meters. The report also reveals that while the forecast

of the storm path and its strength was made very accurately by many agencies days before the landfall, the official

storm surge hazard map grossly underestimated the inundation area of the storm surge which was actually close to

the inundation area of the official tsunami hazard map. Although there was a lot of information available, the

responsible persons at LGU level were obviously unaware of the dimensions of the hazard and vulnerabilities and/or

did not use the information appropriately. A safety check of evacuation centres in the region was either not done or

did not result in appropriate actions.

In general there was enough time for preparations and evacuations as warnings from the government and media

came several days before the typhoon made landfall. Government offices repeatedly asked residents near the coast to

evacuate and, in a few cases, even used force to evacuate them. However, warnings by many institutions, including

OCD and LGUs, were apparently not serious enough to make people understand that their lives were at risk if they

do not evacuate. It turned out that many of them did not understand the term “storm surge”. GIZ concludes that

serious warnings and more effective evacuations along the coastline could have saved many lives.

GIZ also highlights in its report the vulnerability of a number of evacuation centres that according to hazard maps

of PAGASA and PHILVOLCS were located within storm surge or tsunami hazard areas and therefore flooded. As

most of them were single floor buildings they were not designed to host people seeking protection from storm surges

or tsunamis and many people reportedly died for this reason, e.g. also in the Astrodome in Tacloban, where people

were also hosted in the ground floor and drowned.

An assessment of Evacuation Shelters in Eastern Samar conducted by the International Organization for

Migration IOM in April 2014 revealed that of 634 buildings (municipal/barangay halls, day care centres, schools,

health centres and churches) designated by the LGU as evacuation shelters 26 % were completely destroyed by

typhoon Haiyan, 66 % are unusable due to substantial damage and only 8 % would be usable in case of typhoon.

With the next typhoon season arriving in June 2014 this situation is worrying.

According to the recovery programme document of UNDP the disaster highlights the varying levels of institutional

capacity/ varying ways and extents to which local government systems were able to respond to the typhoon warning

and assist their constituent communities to prepare for its impact. Differing levels of capacity in coordinating the

16

response, mobilizing resources and restoring services also directly affect the way in which affected communities are

able to recover from the typhoon’s impact.

The Tacloban Declaration drafted by 280 government leaders, scientists and representatives of the civil society on

the occasion of the ASEM’s Disaster Risk Reduction and Management Conference in Manila, also includes

some important lessons learned during Typhoon Haiyan response and early recovery phase. It recognizes the central

role that the national governments play in DRRM, but also stresses the important role of the local government as

first responders and builders of local resilience.

Gaps/ weaknesses:

The performance assessments of the typhoon Haiyan response conducted by various organisations (UNDP, IOM,

OXFAM, GIZ) all revealed number of weaknesses and gaps of the DRM system at local level. Despite of the fact

that the Philippines has a comprehensive regulative framework for Disaster Risk Management on paper, in reality the

capacities at the local level are still weak and must be strengthened in order to avoid a high number of unnecessary

casualties in futures disaster events.

5.2 Challenges ahead

One of the most pressing issues for Haiyan-affected communities and humanitarian partners has been the

Government’s proposed policy on implementing a “No-Dwelling Zone” (NDZ) within 40 metres of the shoreline

as part of disaster risk reduction. “Safe Zones” and “Unsafe Zones” will be identified through risk mapping and

ordinances on the use of the zones will be issued. However, this procedure requires a certain capacity to carry out

accurate hazard mapping and to develop and implement adequate risk reduction measures. The implementation of

the policy will require a large-scale resettlement of the affected communities, which will expose many poor coastal

dwellers to further losses – particularly those who do not have formal land tenure or ownership. It is important, that

LGUs respect fundamental human rights and follow agreed minimum standards of due progress. Issues such as the

maintenance of social fabric in the resettlement locations and access to employment need to be taken into account to

ensure that resettled people do not suffer further losses and deprivation.

5.3 Coordination and important areas of intervention of other actors

In the areas affected by typhoon Haiyan hundreds of agencies and NGOs are implementing thousands of recovery

and reconstruction projects amounting to millions of USD. Coordination among the different actors and the

alignment of the various projects with the plans of the government and the UN system are of paramount importance

in order to avoid duplication.

The most import response and recovery plans include:

Typhoon Haiyan Strategic Response Plan SRP (launched by UN in December 2013 and targeting 3 million people

for humanitarian aid. Budget request USD 788 million, 56 % of which has been funded by the end of April 2014;

duration 12 months November 2013- November 2014) including nutrition, protective and sustainable shelter

solutions, restoration of livelihood, access to basic water, sanitation, hygiene, and health services, re-establishment

of community and local government services.

The Reconstruction Assistance on Yolanda (RAY)- Build-Back-Better, December 2013, is the Government’s

strategic plan to guide the recovery and reconstruction of the economy, lives, and livelihoods in the affected areas

based on a first synthesis of the overall economic impact of the typhoon Haiyan/Yolanda. The objective of the plan

is to restore the economic and social conditions of these areas at the very least to their pre-typhoon levels and to a

higher level of disaster resilience.

Typhoon Haiyan (Yolanda)- Early Recovery, Livelihoods and Agriculture Plan March 2014- November 2014,

launched in February 2014 by the Philippine Humanitarian Country Team HCT. The strategy focuses on four key

areas: actions as a precondition to recovery (debris clearance), restoration of livelihoods, support to local

government disaster management and service delivery and activities smoothening the transition from early recovery

to longer-term government recovery plans as well as the UNDAF.

UNDP: Programme document Support to Typhoon Recovery and Resilience in the Visayas, January 2014;has a

three-year programme framework with the aim to support the country in transitioning from early recovery to

17

rehabilitation, (beyond SRP), budget request: USD 46.7 Mio (pledged by January 2014:13 Mio USD); The proposed

recovery programme focuses on the underlying systems, resources and human capacities needed to manage

exposure to risks, increase the resilience of economic, social and infrastructural systems, and enhance opportunities

for further sustainable development within the context of the region’s exposure to climatic and natural hazards. The

programme includes: debris removal and solid waste management, support to the restoration of LGU structures and

capacities, emergency employment generation and enterprise recovery, strengthening the transparency and

accountability of the typhoon response at the local level.

In order to provide LGUs with technical expertise in the areas of human rights and DRR related to the no-dwelling

zones/ resettlement plans of the Government, the Early Recovery and Livelihoods Cluster will support the creation of

five Area Disaster Risk Management hubs. The regional resource hubs will be created to provide direct support to

the LGUs in region VI (Iloilo, Capiz) and region VIII (Eastern Samar, Western Samar, Leyte) (cp. annex 9). Each of

the five hubs will be staffed with a team leader and seven experts provided by UNDP, UN-HABITAT and the

Human Rights Commission (addressing protection-related issues).

Following the Typhoon Haiyan, the European Commission in addition to Euro 30 million provided in relief

assistance and early recovery to help most affected communities, made available Euro 10 million for infrastructure

reconstruction. The assistance has been implemented mainly through the following organisations: IOM, FAO, WFP,

the Spanish and Germen Red Red Cross, the ICRC and two NGO consortia led by Save the Children and Plan

International.

Figure 5:

READY Project Target Areas Figure 6: Projects funded by ECHO

5.4 Activities and geographical focus of Swiss NGOs

Several Swiss NGOs are working on DRR and DRM projects in the Philippines. These are namely CARITAS,

HEKS (Hilfswerk der evangelischen Kirchen Schweiz), Swiss Red Cross (SRC), Solidar and Terres des Hommes

(TDH). The focus of projects spans from prevention and livelihood (CARITAS, TDH); to emergency response and

Water Sanitation and Hygiene (HEKS, SRC, Solidar, TDH); to transformative core shelter, reconstruction and

recovery (Caritas, HEKS, SOLIDAR, TDH). The geographical focus of the projects is mainly in Visayas but also in

Bicol and Southern Tagalog. The projects will be implemented partly with own funds, partly funded by Swiss

Solidarity.

An interactive map providing an overview of the activities/projects of Swiss NGOs working within the Philippines

including title, main focus, location and focal point with email address, can be found online at:

https://mapsengine.google.com/map/viewer?mid=zhEVYSL6jZeo.kda7RLWI_U2E . Feedback and updates on the

dynamic map are highly appreciated. (Please contact nstolz@caritas.ch ).

18

6 Recommendations for implementation of recovery projects at local level

Align the recovery/ reconstruction project with strategies, plan, policies of the Philippine Government/ UN

Co-ordinate programmes, projects activities with other actors and exchange information with them on a

regular basis, in particular with other Swiss NGOs working in the same area, in order to take advantage of

possible synergies/ avoid duplication

Assess quality of local risk management capacity thoroughly/make reality check: Local Disaster Risk

Management Council LDRRMC, Local Disaster Risk Management Office LDRRMO, existence of

technically sound multi-hazard risk maps, comprehensive vulnerability mapping etc. (Proposal for

questionnaire LGU see Annex 5; for proposed next steps of risk assessment see Annex 1)

Strengthen institutional set up at local level: although DRM measures unfortunately are not included in

the activities eligible for funding by Swiss Solidarity according to the Lignes Directrices on Typhoon

Haiyan Reconstruction and Rehabilitation, it is highly recommended to include a component to strengthen

Disaster Risk Management capacities of the LGU into the recovery/reconstruction project, if weaknesses

and gaps at the LGU level have been identified.

Emergency shelters and emergency response centres should be re-assessed with regard to their location and

their exposure to all potential hazards.

Integrate Build-Back-Better approach into the projects, instead of solely re-establish the situation before

the disaster.

Integrate DRR/ CCA in a systematic way into recovery/ reconstruction projects and programmes, for

example by following step by step the procedure as proposed by CEDRIG, the Climate, Environment and

Disaster Risk Reduction Integration Guidance tool developed by SDC: (Rapid) Risk Screening including

exposure and hazards, impacts and vulnerabilities (estimation of the overall risks for the activities and

impact by the activity) or a detailed risk assessment if needed

Move towards prevention activities as they are more cost effective DRR or mainstream DRR in livelihood

projects: Ecosystem based DRR can provide win-win situations (e.g. Mangrove trees can play a vital role as

nature’s bio-shields as they absorb and dissipate much of the energy of the storm surge from a typhoon, by

protecting the mangrove trees, livelihoods and biodiversity can be strengthened and the vulnerability to

disasters can be reduced)

Increase the resilience of systems and communities trough the project activities: In the case of community

resettlements of related to “No-Dwelling Zone” (NDZ) ensure directly or through advocacy at LGU level

that fundamental human rights of dwellers are respected and pay attention to issues such as the maintenance

of social fabric, social infrastructure in resettlement locations and access to employment. Otherwise, the

exposure to hazards will be reduced on cost of increased vulnerability and the overall risk will remain

unchanged, or the potential conflicts and social costs will even be increased.

Feed experience and lessons learned at the local level back into dialogue at the national level.

Lucerne, 19.6.2014/updated 8.7.2014

Barbara Rothenberger, consultant (main author),

Marc Stal, Global Risk Forum Davos,

Nicole Stolz, Caritas Switzerland

Annexes Annex 1: Multi-Hazard Risk Assessment, adapted UNDP

Annex 2: Hazard and risk maps repository

Annex 3: Major natural disasters in the Philippines 1900-2014 and disaster trends by estimated damage

Annex 4: Map of activities and geographical focus of Swiss NGOs

Annex 5: Questionnaire on the stage of DRM implementation at local level

Annex 6: Structure at local level

Annex 7: Literature/ Reference Documents, Legal framework

Annex 8: Abbreviations and acronyms

Annex 9: Map UNDP Typhoon Haiyan Project Areas

Annex 10: Recommendations GIZ Early Warning System

Annex 1: Multi-Hazard Risk Assessment

Adapted from UNDP, October 2010

MULTI-HAZARD RISK ASSESSMENT

Step 1: Understanding of current situation,

needs and gaps to assess what already exists,

avoid duplication of efforts, and build on

existing information and capacities. This is done

through a systematic inventory and evaluation

of existing risk assessment studies, available

data and information, and current institutional

framework and capabilities

!

Step 2: Hazard assessment to identify the

nature, location, intensity and likelihood of

major hazards prevailing in a community

!

Step 3: Exposure assessment to identify

population and assets at risk and delineate

disaster prone areas in a community

!

Step 4: Vulnerability analysis to determine

the capacity (or lack of it) of elements at risk to

withstand the given hazard scenarios at a community

!

Step 5: Loss/impact analysis to estimate

potential losses of exposed population,

property, services, livelihoods and environment,

and assess their potential impacts on a community

!

Step 6: Identify cost-effective risk reduction options

(calculate potential result of a disaster risk measure

against scenarios of possible losses) in

order to enhance evidence based risk management.

!

Step 7: Formulation or revision of DRR

strategies and action plans that include

setting priorities, allocating resources (financial

or human) and initiating DRR programmes.

The starting point for reducing disaster risk ... lies in the knowledge of the hazards and the physical,

social, economicand environmental vulnerabilities ... and of the ways in which hazards and

vulnerabilities are changing in the short and

long term, followed by action taken on the basis of that knowledge.”

– Hyogo Framework for Action 2005-2015

Annex 2: Hazard & Risk Map Repository Map provider Hazard/Risk Scale/Location Disaster Phase Weblink / Source:

Glückskette . (Choose Philippines from the filter function)

Overview of Aid Projects in the Philippines.

National Response / Recovery

http://www.swiss-solidarity.org/en/projects/map.html

International Panel for Climate Change

Climate Change Global Prevention http://ipcc-wg2.gov/AR5/

Department of Science and Technology (DOST) Philippines Project NOAH

Typhoon, Storm Surge, Flood

National Preparedness/Early Warning/Response

http://noah.dost.gov.ph/

Manila Observatory Typhoon, Socio economic factors

National Intervention/Response http://www.observatory.ph/Publications/maps?page=1

Mines and Geosciences Bureau

Multi Hazard National Prevention / Recovery http://gdis.denr.gov.ph/mgbviewer/

Munich Re Global Prevention http://www.munichre.com/site/corporate/get/documents/mr/assetpool.shared/Documents/0_Corporate%20Website/_Publications/302-05972_en.pdf

Philippine Institute of Volcanology and Seismology

Seismological National Prevention / Recovery www.phivolcs.dost.gov.ph

Philippine Maps Multi Hazard National, Local Prevention http://www.maps.nfo.ph

Preventionweb Tsunami, Multi Hazard National, Manila Prevention / Recovery http://www.preventionweb.net/english/professional/maps/?cid=135

READY Project Volcanic, Tsunami, Storm Surge/Typhoon, Rain induced Landslide, Liquefaction, Ground Shaking, Ground Rupture, Flood, Earthquake, Earthquake induced landslide

Leyte, Souther Leyte, Surigao del Norte, Bohol, Eastern Samar

Prevention / Recovery http://ndcc.gov.ph/index.php?view=category&catid=1&option=com_joomgallery

Reliefweb Multi Hazard National, Regional

Intervention / Response

http://reliefweb.int/updates?f[0]=field_country%3A188&f[1]=field_content_format%3A12

Swiss NGO's Overview of ongoing DRR Projects of Swiss NGOs working in the Philippines

National Response / Recovery https://mapsengine.google.com/map/edit?mid=zhEVYSL6jZeo.kda7RLWI_U2E

The Philippine Geoportal Multi Hazard National Prevention / Recovery http://www.geoportal.gov.ph/

Annex 3: Disaster Trends for the Philippines Disaster trends for the Philippines show that the impacts of disasters are increasing, not only by total people affected (cp. Table 2, Table 3 ,Figure 1), but also by the impacts of disaster trends by estimated damage (cp. Table 1, Figure 3). The disaster trends also highlight that hydro-meteorological disasters and climatological disasters, all of which could be linked as impacts of climate change, are significantly increasing the number of people affected as well as the estimated damage. Table 1: Top 10 Natural Disasters in Philippines for the period 1900 to 2014 sorted by economic damage costs:

Disaster Date Damage (000 US$)

Storm 11/8/2013 10'000'000

Flood 8/13/2013 2'190'000

Storm 12/4/2012 898'352

Flood 9/4/1995 700'300

Storm 9/29/2009 585'379

Storm 11/12/1990 388'500

Earthquake (seismic activity) 7/16/1990 369'600

Storm 9/24/2011 344'173

Storm 6/21/2008 284'694

Storm 10/18/2010 275'745 Source: "EM-DAT: The OFDA/CRED International Disaster Database www.em-dat.net - Université Catholique de Louvain - Brussels - Belgium"

Table 2: Top 10 Natural Disasters in Philippines for the period 1900 to 2014 sorted by numbers of total affected people:

Disaster Date No Total Affected

Storm 11/8/2013 16'106'807

Storm 12/4/2012 6'246'664

Storm 11/12/1990 6'159'569

Storm 9/24/2009 4'901'763

Storm 6/21/2008 4'785'460

Storm 9/29/2009 4'478'491

Flood 8/6/2012 4'451'725

Storm 10/21/1998 3'902'424

Storm 9/27/2006 3'842'406

Storm 11/20/1973 3'400'024

Source: "EM-DAT: The OFDA/CRED International Disaster Database www.em-dat.net - Université Catholique de Louvain - Brussels - Belgium"

Table 3: Top 10 Natural Disasters in Philippines for the period 1900 to 2014 sorted by numbers of killed:

Disaster Date No Killed

Storm 11/8/2013 7'986

Earthquake (seismic activity) 8/16/1976 6'000

Storm 11/5/1991 5'956

Earthquake (seismic activity) 7/16/1990 2'412

Storm 12/4/2012 1'901

Storm 11/29/2004 1'619

Storm 10/13/1970 1'551

Storm 12/15/2011 1'439

Storm 9/1/1984 1'399

Storm 11/30/2006 1'399

Source: "EM-DAT: The OFDA/CRED International Disaster Database www.em-dat.net - Université Catholique de Louvain - Brussels - Belgium"

Philippines Natural Disaster Trends

Figure 11: Philippines Natural Disaster Trends by Total Affected

Figure 21: Philippines Natural Disaster Trends by Estimated Damage

1 Classifications: Geophysical: Events originating from solid earth (e.g. Earthquake, Volcano, Mass Movement (dry)); Meteorological: Events caused by shortdays), (e.g. Storm); Hydrological: Events caused caused by wind set-up (e.g. Flood, Mass Movement (wet)); processes (in the spectrum from intra-seasonal to multiWildfire); Biological: Disaster caused by the exposure of living organisms to germs and toxic substances (e.g. Epidemic, Insect infestation, Animal Stampede) More information online at: EM – Dat Classification: Total affected: Sum of killed, injured, homeless, and affected. More information online at: EM – Dat Classification: Estimated Damage: Several institutions have developed methodologies to quantify these losses in their specific domain. However, there is no standard procedure to determine a global figure for economic impact. Estimated damage are given (000’) US$. More information online at: EM – Dat Classification:

Philippines Natural Disaster Trends

Natural Disaster Trends by Total Affected

Philippines Natural Disaster Trends by Estimated Damage

: Events originating from solid earth (e.g. Earthquake, Volcano, Mass Movement (dry)); : Events caused by short-lived/small to meso scale atmospheric processes (in the spectrum from minutes to

: Events caused by deviations in the normal water cycle and/or overflow of bodies of water up (e.g. Flood, Mass Movement (wet)); Climatological: Events caused by long-lived/meso to macro scale

seasonal to multi-decadal climate variability) (e.g. Extreme Temperature, Drought, : Disaster caused by the exposure of living organisms to germs and toxic substances (e.g. Epidemic, Insect

Classification: http://www.emdat.be/classification : Sum of killed, injured, homeless, and affected.

Dat Classification: http://www.emdat.be/criteria-and-definition : Several institutions have developed methodologies to quantify these losses in their specific domain.

re to determine a global figure for economic impact. Estimated damage are given (000’)

Dat Classification: http://www.emdat.be/criteria-and-definition

: Events originating from solid earth (e.g. Earthquake, Volcano, Mass Movement (dry)); lived/small to meso scale atmospheric processes (in the spectrum from minutes to

by deviations in the normal water cycle and/or overflow of bodies of water lived/meso to macro scale

dal climate variability) (e.g. Extreme Temperature, Drought, : Disaster caused by the exposure of living organisms to germs and toxic substances (e.g. Epidemic, Insect

: Several institutions have developed methodologies to quantify these losses in their specific domain. re to determine a global figure for economic impact. Estimated damage are given (000’)

Annex 4: Map of activities and geographical focus of Swiss NGOs An interactive map providing an overview of the activities

NGOs working within the Philippines including title, main focus, location and

focal point with email address, can be found online at:

https://mapsengine.google.com/map/edit?mid=zhEVYSL6jZeo.kda7RLWI_U2E

Feedback and updates on the dynamic map are highly appreciated

contact nstolz@caritas.ch )

Screenshot of the interactive map of activities and geographical focus of Swiss

NGOs:

ctivities and geographical focus of Swiss NGOs

An interactive map providing an overview of the activities/projects of Swiss

within the Philippines including title, main focus, location and

email address, can be found online at:

https://mapsengine.google.com/map/edit?mid=zhEVYSL6jZeo.kda7RLWI_U2E

eedback and updates on the dynamic map are highly appreciated. (Please

contact nstolz@caritas.ch )

Screenshot of the interactive map of activities and geographical focus of Swiss

ctivities and geographical focus of Swiss NGOs

projects of Swiss

within the Philippines including title, main focus, location and

https://mapsengine.google.com/map/edit?mid=zhEVYSL6jZeo.kda7RLWI_U2E

. (Please

Screenshot of the interactive map of activities and geographical focus of Swiss

Annex 5: Questionnaire on the stage of implementati on of Disaster Risk Reduction at Local Level in the area affected by typhoon Haiyan in the Phili ppines

Municipality/ Barangay:

Existing DRR/DRM structure Stage Comment

Short description of the municipality (number of inhabitants, surface, number and names of barangays etc.)

Does a Local DRRM Council exist in your area? • Background of the members of the

LDRRMC? (representatives of local authorities, focal points ministries, Civil society, private sector)

Is there a Local DRRM Office LDRRMO? • Number and background of staff/ pre-

existing LGU-officer(s)? • Activities?

Does a comprehensive and integrated LDRRMP Local DRRM Plan exist? • Who has the lead in the implementing

the LDRRMP? • Who was involved in the elaboration

of the LDRRMP?

• How has DRM been integrated into the comprehensive development plan CDP?

• What DRR measures are included in the local budget for the fiscal year?

When has the local CLUP Comprehensive land-use plan been enforced ? • How has DRM been integrated into

the CLUP? • When has the CLUP been updated

for the last time?

What kind of local hazard maps do exist ? (Type of hazards/ multi-hazard/ scale?)

Did the community participate in the READY project of UNDP (with focus on hazard maps and community-based early warning systems) or any other DRM-projects?

For which-types of hazards are there early warning systems in place?

How has the underlying vulnerability of the communities been assessed and integrated into the risk maps ?

Is there a local Haiyan/Yolanda Recovery Plan? Financial mechanism/ contingency planning: How many extra funds does the LGU receive for Recovery and Reconstruction, e.g. Local Calamity Fund from the central government? Quick impact grants? Own recourses (revenue, taxes)?

Has a declared “No -Dwelling Zone” (NDZ) within 40 meters of the shoreline been designated? What is the humanitarian impact for those affected? What kind of resettlement plan does exist, support in preparation for the upcoming typhoon season. Assistance to people living in the NDZ?

What kind of technical support does the community/LGU receive from the five UNDP-resource hubs / advisory/technical assistance from OCD?

How has the community prepared for the next rain and typhoon season beginning in June? How many % of individual houses have been reconstructed? Are the designated evacuation centers usable and situated in safe areas?

In which area of Disaster Risk Reduction do you (LGU/ LDRRMO) need support?

1) DRM Set-up at local level ( city, municipal and Barangay level) At the local government level, it is the primary duty of the Local DRRM Council to ensure that DRRM is mainstreamed into their respective CDP and CLUP and other local plans, programs and budgets as a strategy in sustainable development and poverty reduction. By doing so, the LGUs will be sure that their respective DRRM-programs will be included in their local budgets for each fiscal year. … Local Disaster Risk Reduction and Management Offices (LDRRMOs) The Local DRRM Offices (LDRRMOs) at the provincial, city and municipal levels and the Baranagay Development Councils shall design, program and coordinate DRRM activities consistent with the NDRRMP and develop the Local DRRM Plan of their respective LGUs. The LDRRMPs shall be consistent and aligned with the targets set by the NDRRMP. Likewise, this office shall take the lead in implementing the LDRRMP. 2) READY- project “Hazards Mapping and Assessment fo r Effective Community-Based Disaster Risk

Management Project” Multi-hazard mapping and assessment project with technical assistance from UNDP and in partnership with key government agencies such as, PHI VOLCS, PAG-ASA, MGB, NAMRIA, and others government agencies, implemented in 27 provinces mostly located along the eastern part of the Philippines. (Budget: US $1.9 million/ grant from the AusAID) The project has helped established hazard maps and community-based early warning systems. Under the project, PHIVOLCS has also introduced the use of hazard and risk assessment software called Rapid Earthquake Damage Assessment System (REDAS). The software includes dynamic evaluation of earthquake hazards and information of at risk elements at the community. 3) Hubs of Early Recovery and Livelihood Cluster: Five regional, well-equipped resource hubs will be created to provide direct support to the LGUs in region VI (Iloilo, Capiz) and region VIII (Eastern Samar, Western Samar, Leyte). Each of the five hubs will be staffed with a team leader and seven experts provided by UNDP, UN-HABITAT, and the Human Rights Commission (vulnerability assessment; land planning and management; resettlement planning; urban planning; disaster management; community mobilization).

Annex 6 Structure at LGU level Provincial, City, Municipal Disaster Risk Reduction and Management Councils (P/C/MDRRMCs or LDRRMCs) At the local government level, it is the primary duty of the LDRRMC to ensure that DRRM is mainstreamed into their respective Comprehensive Development Plan CDP and Comprehensive Land Use Plan CLUP and other local plans, programs and budgets as a strategy in sustainable development and poverty reduction. Thus the DRRM-programmes will be included in their local budgets for each fiscal year. As a first step, the local DRRM Plan has to be developed by the LDRRMO using the National DRRM Plan as an overall guide. Structure of LDRRMC:

Functions of the LDRRMCs: a. Approve, monitor and evaluate the implementation of the LDRRMPs and regularly review and

test the plan consistent with other national and local planning programs; b. Ensure the integration of disaster risk reduction and climate change adaptation into local

development plans, programs and budgets as a strategy in sustainable development and poverty reduction;

c. Recommend the implementation of forced or preemptive evacuation of local residents, if necessary; and

d. Convene the local council once every three (3) months or as necessary.

Local Chief Executive

Members: (sec. 10, RA 101211)

The respective heads of: LDRRMO, Local Social welfare and Development Office, Local Health Office, Local Agriculture Office, Gender and Development Office, Local Engineering Office, Local Veterinary Office, and Local Budget Office. Local Planning and Development Officer, Division Head/Superintendent/District Supervisor of the DepEd, highest ranking officer of the AFP, Provincial/City Director/Component City/Municipal Chief of the PNP, Provincial Director/City or Municipal Fire Marshall of the BFP, President of the Liga ng mga Barangay. Philippine Red Cross, 4 accredited CSOs and 1 private

sector representative.

At the Barangay Level, the BDRRMC will be a

committee of the BDC. The BDRRMC shall have at

least two (2) CSO representatives (sec. 12 [d], RA

101211.)

To ensure the implementation of RA 10121 at the local level, the law created the Local Disaster Risk Reduction and Management Office LDRRMO:

Structure of LDRRMO

The DRRM Officer must have the following qualifications:

a. Civil Service eligible

b. Civil Defense/DRM experience

For the purpose of implementing RA10121 at the local level, the Local Calamity Fund will be called the Local Disaster Risk Reduction and Management Fund (LDRRMF).

Not less than 5% of the estimated revenue from regular sources shall be set aside as the LDRRMF. 30% of which should be allocated as Quick Response Fund.

Local Disaster Risk Reduction and Management Offices (LDRRMOs) The Local DRRM Offices (LDRRMOs) at the provincial, city and municipal levels and the Baranagay Development Councils shall design, program and coordinate DRRM activities consistent with the NDRRMP and develop the Local DRRM Plan of their respective LGUs. The LDRRMPs shall be consistent and aligned with the targets set by the NDRRMP. Likewise, this office shall take the lead in implementing the LDRRMP. To do this, the office shall

1) Facilitate and support risk assessments and contingency planning activities at the local level; Consolidate local disaster risk information which includes natural hazards, vulnerabilities and climate change risks and maintain a local risk map;

2) Formulate and implement a comprehensive and integrated LDRRMP in accordance with the national, regional and provincial framework and policies on DRR in close coordination with the local development councils (LDCs)

3) Prepare and submit to the local sanggunian through the LDRRMC and the LDC the annual LDRRMO Plan and budget, the proposed programming of the LDRRMF, other dedicated DRRM resources and other regular funding source/s and budgetary support of the LDRRMO/BDRRMC.

4) Conduct continuous disaster monitoring 5) Identify, assess and manage the hazards, vulnerabilities and risks that may occur in their

locality 6) Disseminate information and raise public awareness 7) Identify and implement cost-effective risk reduction measures/strategies 8) Maintain a database of human resource, equipment, directories and local of critical

infrastructures and their capacities such as hospitals and evacuation centers 9) Develop, strengthen and operationalize mechanisms for partnership or networking with the

private sector, CSOs, and volunteer groups

Local Chief

Executive

Local Disaster Risk Reduction

and Management Officer

(LDRRMO)

Staff for Adminstration

and Training

Staff for Research and

Planning

Staff for Operations

and Warning

Annex 7: Literature/ Reference documents, WebSites International DRR framework

UN/ISDR 2005: Hyogo Framework for Action 2005–2015: Building the Resilience of Nations and Communities to Disasters. World Conference on Disaster Reduction, 18–22 January 2005, Kobe, Hyogo, Japan. Geneva: United Nations, Inter-Agency Secretariat of the International Strategy for Disaster Reduction.

Legal Framework, policies Philippines DRR

Gov.Ph. 2009: Strategic National Action Plan on Disaster Risk Reduction SNAP 2009-2019,

Gov.Ph. 2010: Philippine Disaster Risk Reduction and Management Act of 2010 (RA10121)

Gov.Ph. / NDRRMC 2010: Implementing Rules and Regulation of RA10121, September 2010

Gov.Ph. 2011: The National Disaster Risk Reduction and Management Plan, NDRRMP 2011 to 2028, December 2011

CC

Gov.Ph. 2009: CCA (RA 9729 or Climate Change Act of 2009)

Gov.Ph. 2009: National Climate Change Action Plan 2011--2028

Gov.Ph. 2009: Memorandum of Understanding MoU between the National Disaster Risk Reduction and Management Council NDRRMC and Climate Change Commission CCC, 2011

Mainstreaming

Benson, Charlotte 2009: Mainstreaming Disaster Risk Reduction into Development: Challenges and Experience in the Philippines, Provention Consortium

Gov.Ph. NEDA, UNDP and DipECHO 2008: Guidelines on Mainstreaming Disaster Risk Management in Regional and Provincial Development and Physical Framework Plans. Manila: National Economic and

Development Authority, United Nations Development Programme and Disaster Preparedness European Commission Humanitarian Aid Department.

SDC 2012: CEDRIG- Climate, Environment and Disaster Risk Reduction Integration Guidance, Bern 2012

Resilience

Twigg, John 2009: Characteristics of a disaster resilient community- a guidance note, London November 2009

DRR Progress Reports

GFDRR 2009: Disaster Risk Management Programs for Priority Countries, East Asia and Pacific, Philippines (Country Note, 2009)

GFDRR 2012: Philippines Country Update, October 2012

Gov.Ph. OCD& NDRRMC 2011: Philippines: National Progress Report on the Implementation of the Hyogo Framework for Action (HFA) in the Philippines, 2009-2011 – interim, March 2011

Typhoon Haiyan/Yolanda reports/ assessments/ lessons learned

GIZ, EC-DIPECHO 2014: Assessment of Early Warning Efforts in Leyte for Typhoon Haiyan/Yolanda, Manila, March 2014

IOM 2014: Damage assessment of designated evacuation centers in typhoon-affected areas, Eastern Samar, Philippines, April 2014

OXFAM: Typhoon Haiyan- The response so far and vital lessons for the Philippine recovery, Dec. 2013

ASEM: Tacloban Declaration, Manila, June 2014

OCHA 2014: Humanitarian Bulletin Philippines, Issue 25/1-30 June 2014; Snapshot 07.07.2014

Typhoon Haiyan/Yolanda recovery plans

Philippine Humanitarian Country Team HCT 2014: Typhoon Haiyan (Yolanda)- Early Recovery, Livelihoods and Agriculture Plan March 2014- November 2014, February 2014

UNDP 2014: Support to Typhoon Recovery and Resilience in the Visayas- Programme Document, January 2014

Gov.Ph. 2013: Reconstruction Assistance on Yolanda RAY- Build-Back-Better, December 2013

UN 2013: Typhoon Haiyan Strategic Response Plan SRP, December 2013 Web-sites

ReliefWeb: www.reliefweb.int

UNOCHA: www.unocha.org/crisis/typhoonhaiyan

UNISDR: www.unisdr.org

PreventionWeb: www.preventionweb.net

UNDP: www.ph.undp.org

National Disaster Risk Reduction and Management Council NDRRMC: www.ndrrmc.gov.ph

Department of Interior and Local Government DILG: www.dilg.gov.ph

Philippine Disaster Recovery Foundation pdrf: http://www.pdrf.org

DRR Knowledge Web Site: http://drrknowledge.net/project-overview

Asian Development Bank ADB: http://www.adb.org

Annex 8: Acronyms and Abbreviations CCA Climate Change Adaptation

CCC Climate Change Commission

CDRRMC City Disaster Risk Reduction and Management Council

DENR Department of Environment and Natural Resources

DepED Department of Education

DILG Department of the Interior and Local Government

DOH Department of Health

DOST Department of Science and Technology

DPWH Department of Public Works and Highways

DRR Disaster Risk Reduction

DRRM Disaster Risk Reduction and Management

DSWD Department of Social Welfare and Development

GDP Gross Domestic Product

GIS Geographic Information System

GIZ Deutsche Gesellschaft fur Internationale Zusammenarbeit (GIZ) GmbH

HFA Hyogo Framework for Action

HUDCC Housing and Urban Development Coordinating Council

IEC Information, Education and Communication

JRC Joint Research Centre

LDRRMF Local Disaster Risk Reduction and Management Fund

LDRRMO Local Disaster Risk Reduction and Management Office

LGUs Local Government Units

LWUA Local Water Utilities Administration

MDG Millennium Development Goals

MDRRMC Municipal Disaster Risk Reduction and Management Council

MGB Mines and Geosciences’ Bureau

NAMRIA National Mapping Resource and Information Authority, DENR

NCCAP National Climate Change Action Plan

NDRRMC National Disaster Risk Reduction and Management Council

NDRRMF National Disaster Risk Reduction and Management Fund

NEDA National Economic and Development Authority

NOAH National Organizational Assessment of Hazards

OCD Office of Civil Defence

PAGASA Philippine Atmospheric, Geophysical and Astronomical Services Administration

PAR Philippine Area of Responsibility

PDP Philippine Development Plan

PDRRMC Provincial Disaster Risk Reduction and Management Council

PHIVOLCS Philippine Institute of Volcanology and Seismology

PPP Public-Private Partnership

READY Hazards Mapping and Assessment for Effective Community-Based Disaster Risk Management

RDRRMC Regional Disaster Risk Reduction and Management Council

SNAP Strategic National Action Plan

UNISDR United Nations International Strategy for Disaster Reduction

tf*#{}il{-} ftTg'*ffi

Below are summaries of the most pertinent recommendations for each stakeholder (group).

More detailed explanations are given in the main report.

Fot Scientifi c Institutions. PAGASAs technical capacity should be improved to provide more accurate

information for storm surge warnings and hazard maps.. NOAH sensors should switch to HF radio or satellite phones for uninterrupted

transmission of data.. Storm surge hazard maps should be adjusted taking the recent experiences into

consideration.

For OCD and DOST. 'Warnings should use layman's language and clearly emphasise the seriousness of a

particular hezard.r ,{. colour coded harmonized multi-hazard early warning system should be introduced.. Storm surge should be included in the official warning system (similar to tsunami).

For Disaster Risk Reduction Offices/Committees. Omcials tasked with disaster management (e.g. OCD, rescuers, mayors) should not

stay in high risk areas when an extreme htzard event is imminent. They may become

victims themselves.. Delineate identified danger zones (tsunami, storm surge) clearly with sign posts.. Mark evacuation routes and evacuation centers with sign posts.. Survey existing evacuation centers and identify those within danger zones.. Assign evacuation centres depending on hazard.. Reinforce evacuation centres depending on hazard.. Consider strict enforcement of forced evacuation (example Alb"r.

For l,and use plannels. Assign new evacuation centres outside danger zones and clearly indicate which

evacuation centers are off-limit for which particular hazards.. Consider locally customized no-build zones in high risk areas.

. Consider conditional build zones (e.g. only buildings with special reinforcements;

only business, but no residence, etc.)

:,;t'.i"'i 1..; 'i ; i", ,"'": "1..t'-.i- i'.r* "-, .j 1 ,;r ; ! "''':

ffi